8. HOUSING

INTRODUCTION

8.1 This plan is concerned with those aspects of housing policy that affect the use of land and the condition of the housing stock. It sets a framework within which those concerned with housing provision can work, by providing a reasonable measure of certainty as to the location and type of housing development which will be permitted, while providing flexibility to respond to changing circumstances.

RATE OF HOUSING PROVISION

H1 During the plan period to 2016, provision will be made for an annual average net increase in the dwelling stock of 505.

8.2 This scale of new house-building is in line with the emerging Regional Spatial Strategy (RSS) for the North East. At the time of adoption of the UDP, proposed changes had been made to the housing distribution figures for Gateshead which were at variance with those in the draft RSS. The revised RSS will inform the final housing distribution figures for Gateshead.

FIVE-YEAR SUPPLY FIGURES

H2 Sites are identified in the plan, sufficient to meet a supply figure over the Regional Spatial Strategy period 2004-2021, as follows:

2004-2010: 5,254 dwellings (averaging 751 per year)
2011-2016: 3,194 dwellings (averaging 532 per year)
2017-2021: 687 dwellings (averaging 137 per year)

8.3 The identification of sites on the proposals map and in Appendix 2 takes account of the following sources:

• allocated housing sites identified in Appendix 2a;

• sites arising during preparation of the plan identified in Appendix 2b. Future windfalls (unplanned sites) will be phased in accordance with policy H4 to maintain a balance between new build and demolition rates delivering 505 net additions to the dwelling stock per annum;

• allocated mixed use sites identified in Appendix 2c; and

• the longer-term Urban Housing Capacity sites (the “marginal” and “probable” sites, where constraints need to be overcome) identified in Appendix 2d.

8.4 Appendix 2 builds in assumptions on the anticipated start dates and completion rates for each site, from which the delivery of housing numbers in policy H2 has been calculated.

SITES FOR NEW HOUSING

H3 Priority has been given to identifying sites for new housing development on previously developed land within the existing built-up area, subject to maintaining environmental quality and open space. Development will also take place in selected outlying settlements. Land allocated is shown on the proposals map.

8.5 Prioritisation and phasing of sites will be in accordance with national policy, given that demolition rates will impact on net housing completion figures, over the latter part of the period (2017-2021) it is anticipated that windfall sites will deliver an increasing proportion of the new build figure, well beyond the 687 dwellings identified to date. The historical development of housing in Gateshead has resulted in a complex pattern of settlements in the Borough. The main built-up area stretches along the south bank of the Tyne with concentrated development in the east (together with Birtley) and relatively dispersed settlements in the west and south of the Borough.

8.6 Sites allocated for housing development under Policy H3 are listed in Appendix 2a. Sites with a capacity of twenty or more dwellings, for which planning permission has been granted since 1st January 2003 but where construction had not started by the end of that year, have been added to those identified earlier, including those brought forward from the adopted UDP but not yet developed. No sites with an anticipated capacity of fewer than five dwellings have been allocated. In addition, a number of smaller sites have been granted planning permission and are shown in Appendix 2b, Appendix 2c shows mixed use sites, and Appendix 2d shows additional sites identified by the Urban Housing Capacity Study, either with probable development potential or with development constraints to be overcome, which are not thought necessary to contribute to the supply within the RSS period. The table below indicates the contribution to capacity from the various sources:

	Capacity from previously developed sites	Capacity from greenfield sites	Total
2a - Allocated housing sites	5,463	1,047	6,510
2b - Sites arising during preparation of the plan.	330	17	347
2c - Mixed use sites	1,690	0	1,690
2d - Urban Housing Capacity Study sites	390	198	588
Total	7,873	1,262	9,135
	86%	14%

BRIDGING NEWCASTLEGATESHEAD (NEWCASTLE GATESHEAD HOUSING MARKET RENEWAL PATHFINDER)

8.7 Appendix 2e identifies the phasing of sites in accordance with the three periods included in Policy H2. The Bridging NewcastleGateshead Housing Market Renewal Pathfinder (BNG) was established in 2003, and will, up to 2018, tackle problems caused by low demand for housing by providing housing choice and quality which meet the needs and aspirations of residents in an environment in which people will choose to live and work. Map H1 shows the BNG area in Gateshead.

8.8 Until recently in Gateshead, there has been a gradual loss of population, mainly as a result of limited choice and quality within the housing market and the relatively poor environment of some of the neighbourhoods in the area. Very recent figures show that the population level is stabilising, if not recovering slightly; the Office of National Statistics’ mid-year estimates for 2005 and 2006, the latest available, show a small increase.

8.9 It is recognised that a holistic approach to regeneration, which would tackle all the physical, social and environment concerns within the area, is needed to ensure the long-term stability of neighbourhoods. The focus for investment will be on neighbourhoods that are characterised by a dominance of particular housing types and a lack of tenure choice. Within these areas there are many strengths, including a strong sense of community and infrastructure, which must be built upon, with retention of existing residents a priority. Equally, there is a need to support neighbourhoods that are currently identified as stable in order that they remain so.

8.10 Over the plan period (2004-2021), BNG has identified a scale of change which involves improvement of approximately 2,000 homes, the construction of an overall total of 2,200 new homes and an estimated 1,000 dwellings to be demolished. BNG is intended to restructure the housing market alongside improvements in education, employment, transport, the environment and public services.

8.11 A series of neighbourhood plans have now been adopted for Deckham, Bensham and Saltwell, Felling and Teams. These will provide the framework for future investment and implementation and are brought together under the Gateshead Area Development Framework.

8.12 Housing will be built to meet the needs of residents; this will include affordable housing, promotion of lifetime homes and a mix of size and tenure in order to promote balanced, stable communities. Quality of design is a key aim and joint working with developers and other partners will provide the basis for developing innovation and best practice in these areas.

8.13 Co-ordination of the UDP housing policies and the BNG programme will help to realise the opportunities presented to regenerate neighbourhoods within inner Gateshead, ensuring that a strategic view of land use and housing market renewal is adopted, and that the benefits of BNG are seen across the borough.

Map H1: Pathfinder Area in Gateshead

[Click to see larger image in a pop-up window]

^{© Crown copyright All rights reserved Gateshead Council, Licence No. 100019132 2007}

WINDFALL AND SMALL HOUSING SITES

H4 Windfall and small housing sites may be phased for development over the plan period subject to assessment against the following criteria:

1. whether the supply of sites could be exceeded by more than 10% in any of the periods identified in H2;

2. the effect of development on housing activity within the Bridging NewcastleGateshead area;

3. the location of the site in relation to jobs, shops and services, and accessibility by modes of transport other than the private car;

4. the capacity of the existing and potential infrastructure;

5. the ability to build or sustain communities; and

6. any other material planning benefits.

8.14 The annual average net increase in dwelling provision, set out in Policy H1, is likely to be met primarily through allocated sites during the first part of the plan period. In order to avoid over-provision, and not to undermine housing activity within the BNG Area, there will be a need to manage the release for housing of other land and, in most cases, to postpone its development until later in the plan period. The development of small greenfield housing sites will only be permitted if there are no suitable alternative previously developed sites, and all the criteria are met.

HOUSING CHOICE

H5 All new housing developments on sites of 1.0 hectare or more, or with the potential for the development of 25 or more dwellings, will be required to offer a range of housing choices in terms of housing sizes and types, taking account of the housing requirements of different groups, such as older people, families with children, and ethnic minorities, except in the case of a provider delivering housing for groups with special needs. A more limited range of dwelling sizes and types may be acceptable on smaller sites but development containing small flats or apartments only will not generally be accepted unless there is a local shortfall in such accommodation, and it is in keeping with the character of the area.

8.15 The loss of population from Gateshead, which has been taking place for many years, has partly resulted from short- to medium-distance migration for housing reasons, especially in the 25-44 age group and mainly to County Durham and Northumberland. This typically accounts for two thirds of the net loss of population from the Borough. Whilst the total loss of population appears to have halted, at least for the time being, the key to long-term net inward migration is the attraction of families to settle and remain in Gateshead. This would also result in a healthier balance of age groups and life stages, with more adults of working age, in the resident population. This would also meet the aspirations of emerging Regional Spatial Strategy in underpinning the local economy, assisting job growth and creating the conditions in which the numbers and choice of housing in the conurbation could be expanded.

CONVERSIONS

H6 Applications for the conversion of larger units to flats or apartments will be considered in the context of the mix and balance of housing accommodation available locally and the proportion of smaller dwellings in the neighbourhood. Conversions that result in an overall loss of family accommodation will not receive planning permission, unless it can be demonstrated that a particular, local housing need is being met.

8.16 The aim of this policy, in combination with H5, is to ensure that housing choice is widely distributed across the borough. The Gateshead Housing Needs Assessment has identified a need for two-, three- and four-bedroom dwellings within the borough for those households planning to move in the next five years. The supply of flats within the borough, particularly in the central area and on the riverside, has increased significantly in the last few years.

AFFORDABLE HOUSING PROVISION

H7 Where there is evidence of a need for affordable housing, the Council will seek the provision of a proportion of affordable housing on all housing developments on sites of 0.5 hectares or more in size or with the potential for the development of 15 or more dwellings.

8.17 Government guidance, set out in Planning Policy Statement 3 (PPS3): Housing, seeks to create sustainable, inclusive, mixed communities with a mix of housing, both market and affordable. The Gateshead Housing Needs Assessment shows that there is a surplus of affordable housing in the borough, but there are shortfalls in some areas, and the situation could change over time as properties which no longer meet the needs of residents are demolished. Where a need is identified to meet a specific local shortfall, or to ensure the creation of an appropriate mix of housing in an area, the Council will seek the provision of affordable housing. Affordable housing includes social rented and intermediate housing as defined in ‘Delivering Affordable Housing’.

AFFORDABLE HOUSING IN PERPETUITY

H8 Prior to any development being approved, applicants will be required to demonstrate to the satisfaction of the Council that the affordability of any units provided will be maintained in perpetuity using:

1. a management scheme in association with an appropriate body; or

2. a planning agreement or obligation to control occupancy.

8.18 Having established a supply of affordable housing under Policy H7, the Council is concerned to ensure that the affordable element is retained in perpetuity or until affordable housing needs are shown to have changed.

RURAL EXCEPTIONS HOUSING

8.19 Planning Policy Statement 3 (PPS3): Housing advises that local planning authorities should consider allocating and releasing sites solely for affordable housing, including using a rural exception site policy. The scale and distribution of settlements in the rural area in Gateshead is such that the Council considers that a rural exceptions policy is not appropriate at present. The Council is also aware that local circumstances, in particular relating to specific forms of housing need, can change quickly and it has commissioned consultants to undertake a Housing Needs Assessment.

LIFETIME HOMES

8.20 The Gateshead 2006 Housing Needs and Support Survey established that 31% of households in the borough contained someone with a disability, of which over 40% included someone affected by mobility problems. The borough has an ageing population; over 60% of all disabled household members were aged over 60. Normally their preference is to sustain independence in their own homes for as long as possible. The Survey suggests some mismatch between houses adapted for, and those occupied by, somebody with a disability. The need for accessible housing, documented in the Survey, is also expected to rise with increased life expectancy. If an increasing proportion of the housing stock is designed to more accessible standards, then greater opportunities will be created for people to retain their independence in a property which meets their changing needs.

8.21 The Lifetime Homes standard, developed by the Joseph Rowntree Foundation (JRF), is designed to provide housing that is more flexible, adaptable and accessible, which can more easily meet a household’s changing needs, than that required under Part M of the Building Regulations (2000). The Lifetime Homes standards are achieved by the adoption of a set of sixteen house design criteria which create inter-generational domestic spaces that cater for people’s changing bodily capabilities and capacities, without the need for expensive adaptations or a need to move to specially designed accommodation. Lifetime Homes are not specifically designed for people with special needs, nor are they wheelchair-standard accommodation. However, people with, or who develop, disabilities will face less disruption if more homes are designed to be easily adapted to accommodate them.

H9 All new housing development on sites of 1.0 hectare or more or with potential for the development of 25 or more dwellings, including conversions and changes of use where practicable, will be required to include a minimum of 10% of dwellings, across all types, constructed to ‘Lifetime Homes’ standards providing accessible, adaptable and flexible homes which are capable of meeting changing household needs.

8.22 A minimum of 10% of all dwellings in all residential developments will be specifically designed to the JRF’s Lifetime Homes standards. This percentage will be applied equally to both the market and affordable housing elements of housing schemes. Interim Policy Advice note 5, approved originally by the Council as Draft Supplementary Planning Guidance note 9, sets out the sixteen Lifetime Homes standards and explains further the need for Lifetime Homes to meet the housing needs and aspirations within the borough.

WHEELCHAIR HOUSING

8.23 The Gateshead 2006 Housing Needs and Support Survey established that of the 40% of households affected by mobility problems, some 12% contained someone who was a wheelchair user, 5% of whom required use of a wheelchair within the home. Due to the identified mismatch between houses adapted and those occupied by somebody with a disability, many disabled people face considerable difficulties finding suitable housing which meets their specific access needs.

H10 All new housing developments on sites of 1.0 hectare or more or with potential for the development of 25 or more dwellings, including conversions and changes of use, on sites which are suitable for people with disabilities, will be required to include a minimum of 2% of dwellings to be built, or be capable of adaptation without structural alteration, to Wheelchair Housing Standards.

8.24 Whilst Lifetime Homes offer people who have acquired an additional impairment the choice of remaining in their own homes, they are not designed with the additional requirements a wheelchair user needs. The Council will therefore require that a minimum of 2% of dwellings in all residential developments are designed to, or capable of adaptation to, Wheelchair Housing Standards. This percentage will be applied to both the market and affordable housing elements of housing schemes. Such housing should be evenly distributed throughout the development. Interim Policy Advice note 5, approved originally by the Council as draft Supplementary Planning Guidance note 9, sets out the minimum requirements for wheelchair-accessible dwellings, which are in addition to Lifetime Homes standards.

PROVISION FOR GYPSIES AND TRAVELLING SHOWPEOPLE

8.25 The Council has considered the needs of gypsies residing in or resorting to the borough in accordance with government guidance in Circular 1/94. A site has been provided at Baltic Road, Felling to replace the one that was acquired for the construction of The Sage Gateshead.

8.26 The Council is also required to provide for travelling showpeople as set out in Department of the Environment Circular 22/91. Sites for travelling showpeople need to be able to accommodate fairground equipment in proximity to living quarters. Similar considerations apply to such sites as to sites for gypsies, although the two groups are distinct and cannot be expected to share sites. The Showmen's Guild has not identified any needs specific to Gateshead, but the policy shows how any such proposal would be assessed.

H11 Provision for gypsies and travelling showpeople will be permitted where:

1. there is satisfactory access, within reasonable and practicable walking distance, to facilities, including schools and shops;

2. the site would not be subject to unacceptable levels of noise, air pollution, smell or contamination;

3. there would not be an unacceptable impact on local amenity; and

4. a satisfactory standard of landscaping, access, servicing, sanitation and refuse facilities is achieved.

DENSITY

H12 Residential development should be at a density of between 30 and 50 dwellings per hectare net. Densities above this range will be permitted in locations with good public transport accessibility.

Developments with a density below 30 dwellings per hectare net will not be permitted except where higher-density proposals would have an unacceptably detrimental impact on the existing amenity and character of the area.

8.27 Planning Policy Statement 3 (PPS3) encourages the efficient use of land through higher densities of residential development. The guidance makes clear that developments of fewer than 30 dwellings per hectare are an inefficient use of land and it encourages net densities of between 30 and 50 dwellings per hectare, with densities in the upper part of this range, or higher, at places with good access to public transport. Raising densities in locations well served by public transport and close to jobs and amenities will reduce the need to travel by car. For higher density considerations to apply the Council would expect sites to be served by public transport at a frequency exceeding at least three per hour during the day and one per hour in the evening. Increasing densities will also allow more dwellings to be accommodated within the urban areas, thus contributing to the Council’s strategy of stemming population loss from the Borough.

8.28 Achieving higher densities will be pursued together with an emphasis on good-quality design and imaginative and well-thought-out housing layouts. This approach can meet the density requirements, provide a suitable mix of dwelling types, and provide a good-quality living environment for residents in and around new development. On some sites, achieving a high density may not be physically possible because of topography or ground conditions, a site’s size or shape, or the impact a high-density development would have on the landscape or character of the surrounding area.

STANDARDS IN NEW HOUSING

8.29 In order to reduce population decline, it is important that new housing development achieves a high standard of residential amenity, proving attractive to potential occupiers and protecting the living conditions of existing residents. Only in this way will the amount of development proposed be sustainable within the environmental capacity of the borough. A wide-ranging and consistent approach is required which integrates considerations such as design, safety, green space and local facilities and relates them to the specific characteristics of each site. Design and layout should be consistent with the general development control policies, DC1 to DC4. Maintaining the standard of residential amenity is a long-term consideration which will be applied to individual developments in all parts of the Borough.

PLANNING BRIEFS

8.30 To ensure that sites for new housing are developed in an appropriate manner, the Council will prepare planning briefs for new sites larger than five hectares and for smaller sites in sensitive locations. The content of each brief will depend on that site's characteristics but the briefs will generally provide advice on the physical condition of the site, ecological factors to be taken into consideration, appropriate design, the amount and general location of affordable housing and housing for the disabled, public open space provision and relevant aspects of the wider context.

OPEN SPACE AND PLAY AREAS IN HOUSING DEVELOPMENTS

8.31 New housing development must contain recreational open space and children’s play areas where this is necessary to ensure that the standards set out for the borough as a whole in the Community Facilities and Recreation chapter are met in new housing developments from the outset. Detailed requirements and design advice are intended to be set out in Supplementary Planning Documents, based on those approved by the Council as draft Supplementary Planning Guidance notes, Provision of Open Space and Landscaping on New Developments and Children’s Play Area Standards. These will incorporate new assessments, based on the 2001 Census, of the likely populations of developments of different types and sizes of dwellings, to enable the need for open space and play areas to be calculated. Further information may be set out in planning briefs for particular sites.

LOCAL OPEN SPACE IN HOUSING DEVELOPMENTS

H13 New housing development should include at least the equivalent of three hectares of recreational public open space per 1,000 anticipated residents, unless the standard set by Policy CFR20 is already met, both in terms of the amount of open space within the neighbourhood and the existence of a Local Open Space site within 330 metres of the development site, and would continue to be met after completion of the development. Developments for fewer than 100 anticipated residents should provide the required amount on one area of open space. Developments for 100 anticipated residents or more should provide the required amount on areas of open space of at least 0.2 hectares. The requirements of this policy relating to development of small sites (of between one and ten dwellings (inclusive)) will be satisfied by payment of a commuted sum to the Council to assist in the provision of public open space at a location accessible to the site.

8.32 This policy is consistent with the Local Open Space standard for the Borough as a whole set by policy CFR20 and indicates how it should be applied to new housing developments.

NEIGHBOURHOOD OPEN SPACES IN NEW HOUSING DEVELOPMENT

H14 A neighbourhood open space of at least two hectares will be provided within the housing site at Northside, Birtley, and will be required on any other site or combination of adjacent sites expected to exceed 1,000 residents, where there is no existing neighbourhood open space accessible within 0.5 kilometres of the site or of substantial parts of it.

8.33 This policy is consistent with the Neighbourhood Open Space standard for the Borough as a whole set by policy CFR21 and indicates how it should be applied to new housing developments. Where two allocated sites immediately adjoin each other or are separated only by a single-carriageway road, they will be treated as a single development.

PLAY AREAS IN HOUSING DEVELOPMENTS

H15 New housing (other than developments exclusively for students or elderly people) should have access to appropriate play areas. Where appropriate facilities do not already exist nearby, provision should be made on-site, or may be secured off-site. Play areas should be designed and maintained to meet the needs of toddler, junior and teenage age groups.

8.34 Play is essential to the development of children but inappropriately-located and badly-designed play areas can create problems of noise, disturbance and misuse or will be left unused. Detailed guidance is intended to be issues as a Supplementary Planning Document based on that approved originally by the Council as draft Supplementary Planning Guidance Note 4, and the Council has a range of practices to seek to ensure that appropriate provision is made on new developments to maximise the play value to children in the appropriate age group without damaging residential amenity, and these are kept under review. Toddler play provision, often unequipped, is likely to be required on-site in most cases whereas, except on large developments, it is likely that a financial contribution will be required towards off-site provision for the junior and teenage age groups. On-site provision can be counted towards the open space requirements in policies H13 and H14 above if it forms part of a larger area suitable for informal recreation. This policy is consistent with the play area standards for different age groups set by policies CFR28 to CFR30 in the Community Facilities and Recreation chapter.

< Previous Chapter | Top of page | Next Chapter >